我国“按日计罚”制度裁处程序的规范路径

On the Necessary Path of Perfecting the “Accrued Daily Penalty” System in China:From the Perspectives of Legal Nature Theory and Sanction Procedures

《环保法》第五十九条确立了"按日计罚"制度,但现有的"按日计罚"实施办法缺漏不全以致排污者的财产权缺乏程序保障。"按日计罚"制度的裁处程序亟待完善。"按日计罚"的正当裁处程序内容是由其法律性质直接决定的,但《环保法》对"按日计罚"性质的界定较为模糊,需在未来环保单行法修改时予以明确细化,即依现有环境执法水平设计双轨制"按日计罚"——执行罚性质"按日计罚"和行政罚性质"按日计罚"。相应的裁处程序应分类设计:执行罚性质"按日计罚"应从报请检验、复查期限、计罚天数等方面进行完善,行政罚性质"按日计罚"需逐日送达行政处罚通知书;在行政控制视角下,两种性质的"按日计罚"都应适时与其他环境管制措施进行转换适用。

Article 59 of the Chinese Environmental Law specified the ＂accrued daily penalty＂ system. However, the current implementation of this system is not full-fledged, which results in lack of procedural guarantee to the property rights of the polluters. Sanction procedures of the ＂accrued daily penalty＂ need to be perfected urgently. The legal nature of this system directly determines the contents of proper sanction procedures. But the descriptions about the nature of ＂accrued daily penalty＂ in the Chinese Environmental Law are rather ambiguous, which shall be clarified and refined in future amendments to its separate rules. A dual-track system of ＂accrued daily penalty＂, which includes executive punishment and administrative punishment, shall be designed and implemented subject to the current enforcement level of the Chinese Environmental Law. And accordingly, the sanction procedures shall be classified： the executive punishment in the ＂accrued daily penalty＂ system shall be perfected from the aspects of inspection application, review deadline and calculation of penalized days; the administrative punishment in the ＂accrued daily penalty＂ system shall implement the daily delivery of the notice of administrative punishment decision; Both punishment methods above-mentioned shall transform other environmental control measures from the perspective of administrative control.